2019 INQUIRY CASE STUDY STUDY CASE INQUIRY Mystic River: A Quest for Climate Equity ANN RAPPAPORT LINCOLN INSTITUTE OF LAND POLICY LINCOLN INSTITUTE OF LAND POLICY 1 TOPICS Climate Change, Environmental Management, Environmental Planning, Water TIMEFRAME 2000–2019 LEARNING GOALS • Understand the challenges and opportunities associated with bio-regional planning and sub-national climate adaptation and environmental policy • Identify and plan for diversity in vulnerability to climate change and capacity to act • Understand multi-criteria decision making • Use multiple sources of data to reveal landscapes of vulnerability PREREQUISITE KNOWLEDGE None S U M M A R Y Like many rivers in urban areas, the Mystic River has experienced abuse and neglect. A history of wetlands destruction, pollution-intensive industry, dense development, inadequate infrastructure and disparities in municipal fiscal capacity and physical vulnerability combine to make climate adaptation an urgent priority and monumental challenge for cities in the watershed. Despite progress building climate resilience, the clock is ticking. How can the distinctly different communities in the shared Mystic watershed avoid economic damage and loss of life from flooding and storm surges? And how can risk mitigation projects be funded? The case reveals tensions between community vulnerability and capacity to act, inviting consideration of both community-centric and collective solutions. Exclusive reliance on long term adaptation is insufficient. Case users develop approaches to engage diverse groups in risk management and investment discussions and propose strategies for identifying, developing, funding and, time permitting, implementing and assessing politically palatable and technically feasible solutions. 2 THE VALLEY OF ASHES CASE STUDY Mystic River’s headwaters begin in Reading, MA and form the Aberjona River, then flows into the Upper Mystic Lake in Winchester. From the Lower Mystic Lake, it flows through Arlington, Somerville, Medford, Everett, Chelsea, Charlestown, and East Boston before emptying into Boston Harbor. Source: Mystic River Watershed Association INTRODUCTION Julie Wormser sat at the conference table in the Mystic River Watershed Association’s office on the third floor of a repurposed high school in Arlington, Massachusetts. She reflected on risks associated with climate change by posing a question, “If our infrastructure fails, whose health or well-being falls off the cliff? Like if the Blue line [subway tunnels] fill with salt water and can’t be used for six months, who loses their job? Or if the power grid goes out and you’re on dialysis, or don’t have air conditioning? …the Boston area has done a pretty decent job of floodproofing of structures, but a far less good job of integrating what we understand about public health with climate investments.” Like many urban rivers, the Mystic River in the Boston area experienced abuse and neglect. A history of wetlands destruction, pollution-intensive industry, dense development, inadequate infrastructure, and disparities in municipal fiscal capacity and physical vulnerability combined to make climate adaptation an urgent priority and monumental challenge for municipalities in the watershed. The Mystic River, the communities through which it flows, and the inhabitants of these communities were increasingly vulnerable to the effects of a changing climate. Despite progress on building climate resilience, the clock was ticking. Could the distinctly different communities in the shared Mystic watershed avoid economic damage and loss of life from flooding, storm surges, and more extreme summer heat? With centuries-old development patterns, cherished historic buildings, vast wealth inequalities, and old housing stock, what activities were highest priority? And how could climate adaptation risk-reduction projects be funded? LINCOLN INSTITUTE OF LAND POLICY 1 Vintage engraving of the Plan of action at the Battle of Breed’s Hill (also known as the Battle of Bunker Hill), 1775. The map shows the Mystic River to the north and the Charles River to the south shaping the Boston Harbor. Source: Duncan 1890/Getty Images HISTORY OF THE MYSTIC RIVER WATERSHED The Mystic River was a transportation corridor for early inhabitants of the Boston area, providing access to rich tidal estuaries and, ultimately, Boston Harbor and the Atlantic Ocean. Abundant fish, shellfish, waterfowl, and game once attracted indigenous people to the area long before Europeans arrived. Europeans took advantage of the copious wildlife and, perhaps unaware of its limitations, occupied the area and eventually displaced the original inhabitants. The Mystic River to the north and the Charles River to the south together shaped Boston Harbor, and Europeans settled around the rivers to facilitate travel inland by ship. The location created a commercial advantage, and the rivers that discharged into the ocean provided conduits to a glacially sculpted inland landscape dominated by water. Periodic flooding, the inconvenience of crossing marshy areas, and navigation problems at low tide posed challenges, as did mosquitoes. Yellow fever was traced to infected mosquitoes brought by European ships traveling from Africa to the Caribbean and then to the Boston area by the late 1600s; malaria was also a mosquito-borne problem (Best 1993). The 76-square-mile area that drained into the Mystic River was wet. The watershed was laced with smaller rivers, streams, and wetlands, punctuated with lakes and ponds. Settlers of the Massachusetts Bay Colony relied on ferries to transport them from one dry spot to another. In 1647, Peter Tufts, whose descendant Charles Tufts donated land on which Tufts University sits, along with William Bridge, assumed responsibility for operating a ferry on the Mystic River (Tufts, Peter 2019). As the population in the watershed grew, many water features were confined in pipes and canals, bridged, dammed, and filled to create land for industrial activities, 2 MYSTIC RIVER: A QUEST FOR CLIMATE EQUITY CASE STUDY roadways, and homes. A mid- to late 1970s–era brochure on dams and boat locks in the Charles and Mystic rivers quoted an 1894 report stating that “the banks of the river and the exposed flats have become from year to year more offensive until . people living near the stream have been exposed to the disagreeable and probably injurious emanations therefrom.” Extolling the virtues of the Amelia Earhart Dam on the Mystic, the brochure continued, “A 425-acre fresh water basin blossomed from smelly tidal mudflats and marshes” (MDC nd). Filling marshy areas and floodplains and siting factories near the river allowed easy access to water transport; however, this pattern left a toxic legacy for later generations. An 1877 map shows White Island located in the Mystic River between Everett on the north bank and Boston on the south bank. Beginning in 1804, White Island hosted a dye plant, followed by a succession of chemical companies. The island was enlarged and transformed by landfilling that created a peninsula attached to Everett. The last chemical company occupant was Monsanto, which sold the property in 1983 (Johnston 2010). Given this legacy, the site was highly contaminated. In a 2015 briefing for residents in Everett and Charlestown, consultant Jamie Fay of Fort Point Associates described the type of cleanup that would be undertaken before development would proceed. We will remediate this to where it is safe for open space and outdoors play . Here we intend to remediate to a higher level so that Everett and Charlestown residents can reclaim that waterfront and open space. Fay also noted, “We actually found out that the original owner of the Union Oyster House in Boston operated an oyster farm there and an oyster flat that he used to harvest oysters to serve in his restaurant,” he said. “At one time this was a very lovely estuary with tremendous environmental resources” (Daniel 2015). According to the Union Oyster House website (2019), America’s oldest restaurant started serving food in 1826, 22 years after the site began hosting toxic industrial activities. In 2018, the Wynn Corporation reported that it removed almost a million tons of contaminated soil from the former White Island site at a cost of about $68 million, so it could build a riverfront casino (Associated Press 2018) where generations of chemical plants once stood. The former Monsanto site was one of many heavily contaminated toxic industrial sites in the Mystic River Watershed. Town water supplies were contaminated by industrial chemicals, and former industrial sites and dumps required decades of expensive cleanup activity, some of which continue to this day (Sweeney 2015). The watershed community of Woburn, its contaminated town wells, and a childhood leukemia cluster were the focus of the best-selling nonfiction thriller and the Academy Award–winning movie, A Civil Action. MYSTIC RIVER: A QUEST FOR CLIMATE EQUITY CASE STUDY LINCOLN INSTITUTE OF LAND POLICY 3 The map shows the communities in the watershed and the percentage of minority population. Source: MassGIS Creator: Cullen Mitchell PEOPLE AND COMMUNITIES IN THE WATERSHED TODAY The 22 communities that comprise the Mystic River Watershed vary widely in size, physical features, form of governance, demographic characteristics, and development patterns. For example, Woburn has a total of 12.9 square miles and a population in 2000 of 37,258, for a population density of 1,214.3 people per square mile (Woburn 2019), while Somerville